Common policy in the field of science and technology. Supplement 3/77 Bulletin of the European Communities

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Bulletin

of the

EUROPEAN COMMUNITIES

Supplement 3

I

77

Common policy for

science and tech no logy

Commission

of the European Communities

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In its guidelines for the common policy in the field of science and technology for the period 1977-80. the Commission sets out the objectives, the general conditions, the constraints and the criteria for selection of projects. It describes the priority scientific and technical programmes which exist or are to be developed. It specifies the levels and methods of coordination within the framework of a common scientific and technological policy.

The Commission is also proposing to the Council that it adopts measures for the promotion of research projects of industrial interest and undertakes a research programme on long- term forecasting and assessment in the field of science and technology. The latter programme should permit the definition of long-term objectives and options for research and development.

Printed in Belgium

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Bulletin

of the European Communities Supplement 3/77

Common policy in the

field of science and technology

(Communication from the Commission to the Council of 30 June 1977)

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Commission of the

EUROPEAN COMMUNITIES

COM (77) 283 final

30 June 1977

OJ C 187/77

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Supplements 1977

1/77 Equality of rights for commercial agents 2/77 Community regional policy - New guidelines 3 I 77 Common policy for science and technology

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9.

Dissemination of information, utilization of results and eval- uation of research and development

9.1.

9.2.

9.3.

10.

Dissemination of information Utilization of results . . . . .

Evaluation of research and development

Long-term priorities for the research and development policy .

Final remarks

Annex

Diagrams

1. Selection criteria for EC R & D programmes and projects 2. Coordination of the R & D policies of the EC Member

States ^{• • •}⁰ ⁰ ^{• •}⁰ ^{• • •}⁰ ⁰

3.

R & D forms and financing

4. Adoption of R & D programmes - The role of the EC Institutions and their advisory bodies ⁰ • • • • 0 • • • 0

5. Adoption of R & D programmes- Decision-making pro- cess ^• ⁰ ^{• • • •}⁰ ^{• • •}⁰ ^{• •}• • • • • • • 0 • • • • • • • •

Page

33 33 33 34 34 36

38 39

40 41 42

Decisions to be taken . . . 43 Draft Council Resolution on the guidelines for the common policy in the field of science and technology . . . 43 Proposal for a Council Decision on the promotion of industrial research projects . . . 44 Proposal for a Council Decision on a research programme on forecasting and assessment in the field of science and technology . . . 46

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Page

Brief analysis of public funding for research and development

Introduction 48

Comments 48

Nomenclature for the analysis and comparison of science pro-

grammes and budgets (NABS) 49

Other basic data . . . 49 Graph 1

Graphs 2-10

Graph 11 Graph 12 Graph 13 Graph 14 Graph 15

Public R & D expenditure by country, 1970-76 . . . 49 Public R & D expenditure, total public budget and gross domestic product by country and for all Member States, 1970-76 (index 1970= 100) . . . 50-51 Per capita public R & D expenditure, by country, 1970-76 . . . 52 Public R & D expenditure by NABS objec- tive for all Member States, 1974-76 53 Public R & D expenditure, United States and all Member States, 1970-76 . . . 54 Public civil R & D expenditure, United States and all Member States, 1970-76 . . 55 Expenditure by Community institutions on R & D and total budget, 1970-76 . . . 56 Tables Ia, lb, lc Public R & D expenditure by NABS objec-

tive, 1974, 1975, 1976 . . . 57 Table 2 National and Community R & D expendi-

ture . . . 58 Background, bases and preparation

Abbreviations used . . . .

60 61

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Page 6 in the original is blank.

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s. 3/77

Preamble

In its resolution of 14 January 1974,¹the Council decided to progressively develop a common policy in the field of science and technology.

The Council decided, in this same resolution, that the conclusions from the experience gained in this first phase would be drawn during 1976.

Thus, three years after the beginning of a real common policy in the field of science and technology, the Commission is presenting guidelines for the period 1977-80.²

The Commission outlines the objectives, general conditions, constraints, and the criteria for the selection of projects. It describes the priority scientific and technical programmes which exist or are to be developed. It specifies the levels and methods of coordination within the framework of the common scientific and technological policy.

The Commission is also proposing to the Council that it adopts measures for the promotion of research projects of industrial interest and undertakes a research programme on long-term forecasting and assessment in the field of science and technology. The latter programme should permit the definition of long-term objectives and options for research and development.

Finally, taking account of the results of this first phase and on the basis of a general evaluation of the Community's scientific and technical activities the Commission will propose in 1980 new guidelines for the progressive development of the common policy in the field of science and technology.

I OJ C 7 of 29.1.1974.

2 Information on details of the programmes issued at the request of the Directorate·General for Research, Science and Education of the Commission of the European Communities, 86 rue de Ia Loi, B 1049 Brussels, Tel. 735.00.40, Ext. 4055.

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Page 8 in the original is blank.

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Guidelines

(1977-80)

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1. Community research and technology policy Why and how?

What are the chances for Europe in the years ahead? The answer to this depends entirely on whether we· recognize the central role of science and technology in the development of European policies, and from that recognition proceed to evolve a common research policy. By a common research policy for the next four years, we do not simply mean the continuation of a traditional, somewhat esoteric science policy, but rather the scientific and technological basis for any Euro- pean policy.

The situation is serious. The signs of an economic crisis become increasingly evident. The bound- less faith in continuous linear growth has been shaken; the limits to growth are gradually emerg- ing. The energy crisis that followed the oil em- bargo in the autumn of 1973 and the current worsening of the situation are no more than symptoms. There are indications of major structural crises. They are liable to intensify with growing speed due to the increasing interdepen- dence of the world economy. At the same time, research and technology, long the driving forces of 'progress', have lost credibility.

After the Second World War the industrial na- tions concentrated their applied research effort primarily on large-scale technology. The large nuclear centres and other major research facilities came into being and for many years spectacular nuclear and space projects were the order of the day. The direct application of research and development for the benefit of the citizen was not always apparent. The public is questioning the role of science and technology.

Faced with the present manifestations of crisis, public interest in a common research policy is increasing. But at the same time the public is ask- ing legitimate questions. Why, how and where must the Community intensify its research?

How can the Community help solve Europe's long-term problems? Who benefits from the public funds spent on large-scale technological projects? Are the needs of the public taken into

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account? What is the justification for this or that research programme?

These guidelines for the Community policy in science and technology over the next four years are aimed at providing answers to these questions. They are an attempt to provide a frame- work. A framework for the Community's research policy based on the coordination of national research policies and the definition and implementation of common research programmes. It sets itself certain limits: only programmes that satisfy a specific set of criteria can be embodied in a common research policy. This set of criteria must be regularly applied to assess existing programmes, and serves as a filter for future programmes and projects.

Only in this way can the often unrelated individual projects be integrated into an overall Euro- pean research policy.

These guidelines are first and foremost a communication from the Commission to the Council of Ministers.¹They are, at the same time, ad- dressed to all those affected by the European research policy: to the experts in the institutions of the Community and the Member States, to scientists and specialists in industry and to politicians, economists, journalists and citizens who have rt!alized that the common research policy directly affects their own future.

The political objectives in the Member States are often of a medium or short-term character, whereas the structural problems facing the Com- munity are, typically, of a long-term nature. It is here that we find the justification for a long- range common research policy.

1 Background, bases and preparation, Annex, p. 60.

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2. The common policy in the field of science

and technology - Objectives, framework, constraints,

assessment and selection criteria

Community research policy must have a clear fr.amework and ~lear objectives.' It must recog- mze the constramts and face the difficulties. It must start with an evaluation of its past efforts and criteria for its future programmes. It must accep! the current limitations if it wants to give new Impetus to a European R & D policy. The three separate Treaties of the European Commu- nities (the European Coal and Steel Commu- nity, the European Economic Community and the European Atomic Energy Community) do not constitute a unified legal framework. Due to the Euratom Treaty the task of the Joint Re- search Centre was originally limited to Nuclear Energy.

Indeed it is only since the Council Resolution of 14 January 1974² (see Annex) th<rt one can speak of a comprehensive Community research and technology policy. ³ This Resolution was a major step forward.

The common policy in the field of science and technology is to have a twofold task: coordinating the policies of the Member States· and defining. and implementing research progr~mmes and projects of Community interest. It is intended to underpin the Community's sectoral policies e.g.

'energy', 'agriculture' or 'environment'

a~d

at the same time help in developing new' sectoral policies, such as 'raw materials' or 'social and sociological problems'.

How~ver .the realizatio~ of this new concept remams d1fficult. The different decision-making procedures resulting from the three Community Treaties continue to exist.

The financial resources available to the Commu- nity for its research and technology policy are ex- tremely limited: they amount to only 1-2% of the public funds spent by the Member States on R ~ ~· A pragt?atic approach is necessary. These gUldehnes are mtended as a contribution.

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The general objectives ⁴ of the Community research and technology policy correspond to the political aims of the Community. There are four main objectives:

(i) the long-term supply of resources (raw materials, energy, agriculture and water);

(ii) promotion of internationally competitive economic development;

(iii) improvement of the living and working conditions;

(iv) protection of the environment and nature.

Of course, these general objectives cannot be achieved by the common research and technology policy alone. The common policy should contribute to the achievement of these objectives where necessary and where the Member States are unable to do it alone.

In this ~n~eavour, the common research policy, already hm1ted by the Community's historical development and the existing separate treaties, is severely hampered. How is any policy of coordination possible when even in the Member States the planning of research projects and programmes remains partly uncoordinated? How can there be a policy of coordination when the Member States are unwilling to commit themselves in this respect?

How can the Community plan and implement technological projects when the Member States themselves are passing through a difficult period in their own technological planning? The more interesting, practically applicable and important technological projects are for national industry, the more reluctant are the Member States to set aside their national self-interest. The difference between theory and practice in the relationship between national research policies and the Com- munity research and technology policy is one of the handicaps from which the Community's research policy suffers.

It is in the light of these constraints that the progress of the common research policy to date must be assessed. How can the Community pre-

1 Diagram 1, Annex, p. 38.

2 Background, bases and preparation, Annex, p. 60.

1 OJ C 7 of 29.1.1974.

• Supplement 4/76 - Bull. EC.

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sent a systematic evaluation of research results when there are no common criteria? Indeed this is a problem which Member States themselves are trying to tackle with difficulty.

In the future the Commission will make a systematic effort to account for its work, in an attempt to answer the public's legitimate question:

'What are we getting for our money?' It will call for an intensive joint effort on the part of the Community Institutions and the Member States to develop common criteria which can in turn be of use to Member States. First thoughts towards a common approach are contained in these guidelines.

Despite these limitations, however, the Commu- nity research policy has made progress over the past three years. Since the Council Resolution of 14 January 1974, it has progressively developed beyond its mainly nuclear heritage.

The common research policy has moved a step closer to the citizen and his needs. This is espe- cially apparent in the preparatory work on new Community research programmes, notably in fields such as:

- raw materials;

- medical research;

-energy;

- social policy;

- town planning;

- development policy.

Existing programmes have also been re-orientated to bring them closer to the short- and long-term needs of the citizens. Existing programmes that are being continued are:

-fusion;

- biology and radiation protection;

- environment;

- Community Bureau of Reference;

- ECSC research.

New Community programmes have been adopted as an initial response to the critical situation in the energy sector:

- energy conservation;

- new sources of energy;

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- plutonium recycling;

- storage of radioactive waste.

In addition, the Joint Research Centre with its four establishments at lspra, Gee!, Petten and Karlsruhe has now for the first time a multiannual programme consistent with the new orien- tation of the common R & D policy. The recent successful reorganization of the JRC will assure the effective execution of this programme.

A new method of implementing the common research policy-known as 'concerted action '-has been developed successfully since 1974; under this form of coordinated Community research, the work is entirely carried out and fi- nanced by the Member States. Only the modest costs of coordination are charged to the Commu- nity budget.

Coordination, the key element of Community research policy, has proved difficult due to the established decision-making procedures and or- ganizational structures, and due to the varying state of research in the member countries. The 'Scientific and Technical Research Committee' (CREsn set up in 1975, which is composed of senior officials from the Member States and gives advice to both the Commission and the Council, plays a central role in the coordination of R & D policy.

The Commission, in a continuing dialogue with other Community bodies, with Member States, with the various advisory committees, with independent experts and with anyone concerned with research policy, has made a particular effort to develop the concept of a common Community research and technology policy. Out of these efforts it has become clear that the selection criteria for common R & D action have to be refined. A set of selection criteria was developed. It is not a rigid scheme but a flexible guide for the Com- mission and the other Community Institutions, as well as for the scientists, industrial firms and politicians concerned. It can help answer the questions: 'Should this or that research project or programme be carried out by the Community?

Will it contribute to the development of the common European research policy?'

1 Milan Symposium, 24 to 26 May 1976: • A Science and Technology Policy for the Community'.

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The set of criteria has three levels. The first level is determined by the general political and legal framework of the three Community Treaties and the Council Resolution of 14 January 1974.

The second level embraces four general criteria:

(i) Effectiveness: Greater efficiency and rationali- zation at Community level (as in the case of fusion);

(ii) Transnational nature: Research and technol-

ogy projects requiring transnational actions (as in the case of transport, information and documen- tation or telecommunications);

(iii) Large market: The development costs and

marketing opportunities require transnational markets (e.g., data processing, aerospace);

(iv) Common requirements: The projects satisfy needs common to all Community countries (e.g., environment, town and country planning, standardization, radiation protection).

These general criteria are to be supplemented by more specific criteria on a third level. The individual criteria carry different weightings depending on the specific programme or project. To some extent they overlap. Some of them can be grouped together.¹Their function is to provide a systematic check-list and a guide. The satisfac- tion of any one of the following criteria is an ar- gument for carrying out the project at Commu- nity level, it is a necessary but not always sufficient condition. The political decision taken on the basis of these criteria will in the end deter- mine the launching of a Community research project.

The list of the specific selection criteria is as follows:

1. The costs, whether in terms of money or manpower, are too high for any single Member State, or joint implementation can lead to significant savings, as is the case with major long-term projects such as fusion research or with the con- struction and exploitation of large test rigs.

2. The national R & D capacity is insufficient;

in this case collaboration at Community level can lead to results more rapidly, in particular for issues of topical interest-examples being new sources of energy (solar, geothermal) and energy- saving.

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3. Activities in Member States can be combined for greater efficiency to form a new comprehensive programme; some areas of genetics and solar energy research are good examples.

4. R & D is in an initial phase, whereas a Com- munity programme would stand a good chance of competing internationally. This refers in particular to areas of industrial research, such as new international land transport systems.

5. A Community project should have real innovation potential in either industry or the public service sector. Research into new sources of energy is a typical example of the industrial innovation potential, while town and country planning and environmental research are typical of the public service sector.

6. Community projects can provide the necessary stimulus to specific research and development areas: pilot projects (e.g., for coal gasification, or the reprocessing of nuclear fuels) and demonstration projects, as in the area of new energy sources (geothermal heat, solar energy, heat pump, heat insulation in buildings).

7. Divergent development trends in Member States should be avoided where they are contrary to Community interests.

A case in point is the coordination of solar energy research in the member countries; in view of the keen international competition, fragmenta- tion of the European industry would be undesir- able.

8. Community projects offer the opportunity for a long-term approach; this at a time when national R & D programmes are under growing pressure to produce short-term results in a period of diminishing financial resources. Long-term options have to be kept open, e.g. fusion, or non-nuclear energy research.

9. A large degree of standardization and harmonization of methods of comparison, measures, and information systems is essential for a common R & D policy-and for an internationally competitive industry and technology. The Com- munity Bureau of References, the Environmental Chemicals Data Bank (ECDIN) or the European Information Network (Euronet) are examples.

1 Diagram l, Annex, p. 38.

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10. The provision of services and infrastructure for the Community. In the narrower sense, this applies to activities such as the Bureau of Refer- ences or the provision of scientific and technical information. In a wider sense, it applies to the JRC as a whole, which offers a service upon which in particular the Member States with limited research potential would otherwise be unable to call.

11. The function of service and infrastructure is closely linked to the independence of Commu- nity research activities. This is where Community research could play an increasingly · important role. The fact that the Community's technology policy is less directly connected with industrial interests, and the experience· it has gained in the services sector, enable the Community to give a more impartial judgment. It favours Community action in sensitive areas of research, such as radiation protection, reactor safety or applications of genetics.

In general, the explicit support of the Member States for a particular Community R & D programme-e.g., because of a current political situation or an acute crisis-constitutes an important reason for Community action. Similarly, preferen- tial consideration should be given to research projects which can help to bring about the desired structural changes within the framework of the Community's regional policy.

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3. The Joint Research Centre

The Joint Research Centre consists of four research establishments at lspra in Italy, Gee! in Belgium, Petten in the Netherlands, and Karls- ruhe in the Federal Republic of Germany. Their research activities are known as 'direct action'.

Why does the Community need its own research establishments? Is it not sufficient to coordinate research programmes in national research centres or industrial laboratories of the Member States by way of indirect and concerted ¹ action projects?

Does the Joint Research Centre really play a necessary role in the gradual development of an integrated Community research policy? Has the Community learnt its lesson from the continuing crises of the Joint Research Centre of the past years? These are all questions that are being asked today.

First of all it must be borne in mind that the Joint Research Centre has just gone through a difficult period of reorganization of which public opinion and the scientific world are not suffi- ciently aware.

Under the Euratom Treaty the Joint Research Centre was set up as an instrument of an independent Community research and development policy in the field of nuclear energy. With the growing interest of Member States and the national industries in the development of nuclear energy in a national context, the situation of the Joint Research Centre became more and more difficult. The Member States with extensive research potential, in particular, were not prepared to develop the reactor concepts and the fuel cycle on a Community basis. This led to the crisis of the Joint Research Centre in the years 1967-1972.

With the four-year programme of February 1973 the Joint Research Centre received new impetus.

Research and development activities were ex- tended to non-nuclear fields, but the attitude of some of the Member States to the future of the Joint Research Centre remained ambivalent. Ne- vertheless it tackled energetically the difficult task of reorganizing its establishments and rede-

1 Chapter 7.

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fining its activities. In 1977 a new four-year programme was approved. With this, the future of the Joint Research Centre is now secure.

The Joint Research Centre has four main functions:

1. The Joint Research Centre provides the Community with its own independent research and development potential. It acts as a catalyst for projects of Community interest. In particular, 1t g1ves the Member States with limited research potential access to a potential that they do not possess. For the various Community Institutions the independent judgment of the Joint Research Centre provides vital support.

The overlapping of interests, often the case at national lev_el-for ~xample with industries having a vested mterest m the results-does not exist at the Joint Research Centre.

2. The Joint Research Centre makes available for Community use major testing facilities that could not be afforded or fully exploited by individual Member States.

One example is the planned European helioclimatron which will be able to simulate solar radiation and very extreme weather conditions so as to test developments in the field of solar R & D.

3. The provision of services is another important function. The Joint Research Centre has long play~d an important part in supporting the Commumty Bureau of References. New service functions relating to nuclear safety or environmental protection are gaining in importance.

In the field of chemicals harmful to the environment, the project for the ECDIN environmental data bank at lspra will provide an information network available to politicians, research scientists. and industrialists as well as to the general pubhc. As part of this function the Joint Research Centre also carries out contract research for third parties.

Indeed, most of the Joint Research Centre's activities will in future be combined with the provision of services for the member countries.

4. A new function of the Joint Research Centre aims at contributing to collaboration with the Third World in the context of development pol-

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icy. Numerous Community research projects can

~e of use to developing countries. Examples mclude various forms of solar energy research remote sen.sing techni.que~ suitable for agricultu~

ral and reg10nal plannmg m developing countries or . the development of information systems

· whtch can be . geared to. the particular requirements of certam developmg countries.

The new programme of the Joint Research Cen- tre concentrates on four main areas. Approxi- mately half of its financial resources goes to nuclear research and the other half to the non-nuclear activities that have been built up in recent years.

Nuclear sqteo;: In the fie!~ of nuclear energy, the Commumty 1s concentratmg on a few key areas.

Along. wit.h pl~tonium and actinides, pride of place 1s bemg gtven to reactor safety and radioactive waste. It is endeavouring to prevent divergent trends in the Member States, and, in view of the current ~ritical situation in the nuclear sector, to make services available to the Member States.

Exp~nditure in .the field of nuclear safety is ap- precta?le, even m comparison with what is being spent m the Member States. Community research plays a special role in this important area.

New sources of energy: These activities have three main subdivisions: the continuation of hydrogen research including in particular energy production by thermochemical decomposition of water the growing area of sola~ energy research, and fi~ally the new area of fus10n reactor technology.

. Environment and resources: These activities concern on the one himd studies on air and water pollution (transport models, measurement methods including teledetection, the pilot project ECDIM and on the other hand the application of methods for teledetection in the field of renewable resources, essentially orientated towards the agricultural sector (inventories, harvest forecasts soil humidity, thermal balances). ' Services: In addition to its work on nuclear and non-nuclear reference materials and methods the

Join~ Rese~rch

Cen!re is increasingly taking on pubhc service funct10ns by making its research results systematically available to the Community Institutions and the Member States. Mention

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should be made of the research activities in the area of control of fissile materials. For the Mem- ber States with limited research potential, in particular, the services of the Joint Research Centre often offer the main means of access to a large interdisciplinary research centre.

The importance of~the individual topics on which the Joint Research Centre will be concentrating in future years will be further amplified in the next Chapter. Concentration on these main areas and the intensive development of its main functions could provide further impetus to the Joint Research Centre.

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4. The principal scientific

and technological programmes of the EC

4.1 Resources

The European post-war society has become accustomed to apparently unlimited resources.

Energy, raw materials and agricultural products appeared to be available without limit. Only with the oil crisis did it become glaringly obvious that there is a limit to growth and that the resources of the planet are finite. Yet in the European Community, the necessary conclusions have not been fully drawn up to now. What is needed is a new awareness of the limits to development, a new restraint, a new sense of responsibility towards the Third World and future generations.

Otherwise the squandering of resources that form the foundations of our economic and social development will continue unchecked until it is too late.

4.1.1. Energy

The Community research programmes in the energy sector have to support the development of the common energy policy. It is not a matter of deciding for or against a certain energy source and investigating it, but rather of developing a flexible energy research policy which also makes allowance for improbable events in the future.

An energy research policy of this kind has first to eliminate unworkable alternatives, whilst keeping options open for the future. The different energy options vary in importance depending on the time scale considered. The different phases can be defined as follows: the short-term prospects for the next four years, the medium-term prospects up to the end of this century, and finally the long-term prospects up to the end of the first quarter of the next century. The various energy options vary in importance in these phases. New sources of energy must be developed in the long term. Even if it is possible to reduce substantially the present rate of growth in the consumption of primary energy, there will

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still be serious energy bottlenecks in the long term.

It is clear, on the other hand, that new sources of energy cannot solve the immediate energy problems. Only after enormous effort can they gradually start to make an appreciable contribution to the energy supply,

The common research policy first has to clarify the various possible energy options. The selection e:riteria have then to be applied to the different energy sectors in order to define research projects and give them an appropriate weighting within the context of the three time scales. It is not enough for energy research to develop new energy sources or to increase the yield of traditional sources. It is also important to investigate the effects and basic requirements of present and future forms of energy. How much energy is really necessary?

By whom is the energy used? What are the consequences of using various sources of energy -e.g. nuclear or solar-for the safety of the general public or for the human and natural environment? What are the long-term climatic effects of continued increase in energy production?

Five different energy options can be distin- guished. They are at the same time the key ele- ments of the Community energy research policy.

1. The fossil energy sector: this embraces coal, lig- nite and hydrocarbons. It is the aim of the Com- munity energy policy to make increased use of the indigenous and traditional energy sources.

Community energy research supports this aim.

In the field of coal research, coal conversion and in particular gasification will play an increasing part. A pilot project at Community level could be a valuable contribution. For hydrocarbons, new marine drilling and exploitation techniques are being supported.

2. Nuclear fission: this includes the 'conven- tional' reactors already in operation and the fast- breeder and high-temperature reactor development projects, as well as the entire nuclear fuel cycle.

The Community as such does not concern itself with direct reactor development. It does however

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identify problems of Community interest. Safety is a public concern and consequently is an important topic for research. In the Joint Research Centre's new multiannual programme, research on reactor safety is the most important topic.

Radiation protection and the storage of radioactive waste also have high priority; about 80% of the Member States' research on the disposal of highly radioactive waste is being coordinated by the Community.

The problems related to the development of nuclear energy in Europe are becoming more acute.

The issues of reprocessing and storage need further clarification. In some Member States there are indications of developments that might jeopardize these nuclear energy programmes. The danger of terrorist groups laying their hands on fissionable material or even occupying atomic plants is taken seriously. In this situation and in view of the transnational nature of these problems that affect all Member States, the Commu- nity has an important role to play, both in the development of common solutions for the fuel cycle and the development of common criteria and standards in the area of reactor safety.

3. Nuclear fusion: The utilization of fusion energy for the generation of electricity offers the possibility of solving the problem of energy supply for years to come. Results that could significantly contribute to the energy supply cannot, however, be expected before the next century.

Community fusion research plays an important role in keeping these long-term energy options open. The JET (Joint European Torus) is the most important project in the common fusion programme: it is the sole means by which Euro- pean fusion research can hope to compete with that of the United States and the Soviet Union.

In future, Community research must increasingly concentrate on questions related to the technological development of the fusion reactor. Only when these questions have been solved will fusion contribute to the generation of electricity.

4. New non-nuclear energy sources and energy vec- tors: these energy options include new sources of energy such as wind and wave energy, geothermal energy and above all solar energy and hy-

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drogen as a new energy vector. These offer great prospects for the future. At the present time, however, a realistic view must be taken of the limited contribution they can make-even with intensive R & D, to relieve the short-term energy balance.

In the medium and long term, there are good prospects that solar energy can make a substantial contribution, both quantitatively and qualita- tively, to the supply of primary energy.

The Community realized the potential of solar energy very early on. The Joint Research Centre carried out preliminary studies on the application of solar energy years ago. At present the main common research subjects, which will be ex- tended in the future, are:

- the application of flat-plate collectors and thermal storage for heating and cooling buildings, which is expected to achieve substantial energy conservation since much energy is wasted in heating and air-conditioning systems;

- the development of a pilot project for a helio- electric power station which is at the design stage-such thermal solar power stations convert- ing direct solar radiation into electricity are not only of importance for the south of Europe, but can also give new impetus to the European export industry;

- the photoelectric conversion of solar radiation into electrical energy using semiconductor cells as developed for space exploration-since 1976 the Community has been successfully coordinating European research in this field;

- photochemical and photobiological research projects which could lead to the production of directly usable high-grade fuels.

The Community has set the pace with its solar energy research. It has stimulated an area of research which was in its infancy and which in the Member States was either non-existent or subcri- tical. It has reacted to a demand expressed by industry and scientists. Faced with the energy crisis, it has reacted rapidly to the practical needs of the Member States. It has made a contribution to the sectoral energy policy. It has prepared pilot projects, and is to provide a cost-saving public service in the form of a cost-saving simulation and test plant (helioclimatron).

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The Community programme on new unconven- tional energy sources also includes geothermal energy. Geothermal energy could make a considerable contribution to energy supply in certain areas of the Community, for both heating and the production of electricity. The programme will first identify those areas particularly amenable to the exploitation of this source of energy and then develop the appropriate technology for application. In an area traditionally underestimated by the Member States, this programme has provided a major stimulus for further development.

Finally, the development of hydrogen as a potential energy vector complements the research on new energy sources within the framework of the Community programmes.

5. Energy conservation: The development of the different types of primary energy sources and energy vectors alone is insufficient. Further measures are necessary. Energy conservation in particular must play an important role in the short and medium term. On the one hand, this requires a new awareness that there is no future for the wasteful society, and that each and every one has a part to play. It also requires research and technological progress in areas such as insulation of buildings and the various possible uses of the different forms of energy. For example excessive- ly large quantities of electricity are used today for heating and cooling with a relatively low degree of efficiency. Through the harmonization of energy conservation measures the Community can provide a useful stimulus to innovation in this field. Community research should provide the basis for such innovation. Energy storage is another major element in the energy conservation programme.

Research and development on energy conservation is in its initial stage. The common research programme will coordinate scattered national programmes and combine them into a new internationally competitive entity.

The energy research policy clearly highlights both the difficulties and the advantages of a common research policy. It is very dependent on external conditions: on the developing energy policy of the Community; on the different and, due to internal and external influences, frequently changing energy programmes of the Member States; on

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the strategies of the large utilities over which the Community has virtually no influence. This does not facilitate the coordination of research in the Community. On the other hand the relatively large proportion of real Community programmes in this area bears witness to the Member States' recognition that they will solve their energy problems better by firmly supporting Community research. Common energy reseach can play an increasing role as a catalyst. It can help make Eu- rope's citizens conscious of the future importance of new energy options, and contribute through appropriate research to improving the future energy supply.

4.1.2. Raw materials

In a world of finite resources, and growing material needs, the European Community, which imports 70 to 100% of most of its raw materials, will be confronted with increasingly serious economic and political problems. It is therefore essential for the Community to develop a coherent and comprehensive raw materials supply policy.

In addition to guaranteeing the continued external supply, two components of such a policy are of paramount importance: increase of internal supply, and conservation through recycling, sub- stitution and product design.

R & D can make an important contribution to furthering these objectives. It may also help develop new technologies and know-how which will improve the Community's position as a unique trading partner for developed as well as developing countries.

The Community R & D programme aimed at increasing the internal supply of primary raw materials includes three main areas:

- the first concerns the search for new mineral deposits within the Community, in particular of copper, zinc, lead, phosphates and uranium. A joint effort will be made to discover deep and concealed deposits through the improvement of geological knowledge and prospection methods;

- the second area covers new methods of ore processing, for example aluminium-rich rocks.

Here feasibility studies will be followed by pilot plant projects;

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- the third area concerns mmmg technology, with special reference to deep deposits and low- tonnage deposits which are now uneconomical.

New mining and extraction techniques must be developed.

A joint effort will help avoid duplication and, through coordination, facilitate the discovery of new internal resources as well as the more effective development of Europe's own advanced technologies, which may also improve our export potential.

With regard to conservation in the use of raw materials, an integrated Community R & D programme on secondary raw materials is now being prepared. It should improve the technical basis for achieving the following policy aims:

- increased recycling of domestic and industrial waste materials, e.g. non-ferrous metals and pa- per;

- increased recovery of waste such as old tyres;

- full exploitation of agricultural and forestry wastes through the production of valuable organic materials and products;

- replacement of expensive, non-indigenous materials with others more abundant in the Community;

- design of products for easier recovery of materials or requiring less material for the same performance. Thus far research in this sector has been fragmentary. Its intensification should in most cases also help to improve the energy balance.

The Community's raw materials research will in future grow in importance, as these problems increasingly transcend the scope of Member States.

Research is still in its early stages and could in many fields become internationally competitive by combining and coordinating the activities of the Member States. The link-up with environmental protection problems should ensure public support for this Community research activity.

4.1.3. Agriculture and food resources

.

Community agricultural research programmes must support and develop the common agricultural policy. They must also wherever possible sup-

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port the objectives of other Community policies, for example, environment, regional development, energy saving and aid to developing countries.

The early attempts at coordinating research on African and classical swine fevers between 1966 and 1976 gave results which permit the Commis- sion to introduce in the near future proposals aimed at the total eradication of these two diseases from the Community. A similar programme on animal leucoses (1975-78) will assist veterinary control through better diagnosis, and freer movement of livestock by harmonization of national legislation.

The existing programmes which run from 1975- 78 also include: a programme on using livestock effiuents as a fertilizer and examining its effects on crops and animals (environment, energy saving); a programme to improve productivity in beef production; and a programme to improve the exploitation of the Community's plant pro- tein.

The need to recognize wider interests than the agricultural industry alone points to future research on more rational use of land (regional development, environment); reduction of the use of pesticides and fertilizers (energy saving, environment); effects of intensive agriculture on soil structure and on water (environment); more economic use of animal feed and improved animal nutrition. This view of Community agricultural research encourages the belief that technological progress need not be achieved at the ex- pense of the environment or the consumer.

Future research must also consider the possibility of assisting developing countries in solving their problems.

4.1.4. Water

Water may become a critical resource even in the regions of the Community which are usually well-endowed in this respect. This was clearly demonstrated by the 1976 drought. Greater atten- tion must be given to the problem of ensuring adequate supply and quality. In addition to water pollution research within the framework of the Environmental research programme, new studies

20

and research are needed to improve our knowledge in the following areas:

.- the water cycles in the various regions of the Community;

- water management;

- water storage;

- recharging of groundwater;

- water treatment technology;

- possibly the desalination of sea and brackish water.

4.2 Environment

Destruction of the environment is endangering our future. The harmful consequences of economic and industrial developments-often neglected until too late-are becoming ever more apparent. It is vital that action be taken to limit or avert these dangers. In 1973, the Community adopted a common environmental policy¹which is justified by the transnational character of the problems involved and the need to avoid the consequences that uncoordinated, go-it-alone policies at national level would entail for the free movement of goods and free competition within the Community.

This Community policy needs to be backed by sound scientific and technical knowledge. This is why since 1973, the Community has been carrying out research projects in the field of the environment. The current programme which termi- nates in 1981 includes the following points:

- the investigation of the effects of pollution on man and the environment by means of epidemi- ological surveys and ecotoxological research;

- the improvement of methods for the measurement of pollution, including remote sensing techniques;

- the development of environmental information management, especially the ECDIN pilot project for a data bank on environmental chemicals;

1 OJ C 112 of 20.12.1973; Bull. EC7/8-1973, points 1301 to 1309; OJ C 139 of 13.6.1977; Bull. EC 12-1976, point 2227.

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- pollution abatement technology, particularly sewage and industrial effluents, sludge disposal and the development of clean technologies;

- the natural environment, which can be better protected from detrimental human activities through a deeper understanding of natural eco- systems; in this connection, a joint effort will also be launched in the area of climatology to improve the forecasting of the long-term effects of man's activities on the climate; new models will be developed.

Community environmental research is the answer to a common need that is being felt ever more acutely. It is closely linked to other areas of research such as energy, raw materials or town and country planning. It is a means to achieving effective, cost-saving coordination in a field of investigation that is still entirely in the develop- mental stage. It will permit the introduction of uniform standards of environmental protection throughout the Community. The lively interest displayed by the public in questions of environmental protection will provide a stimulus for the further development of Community research in this sector.

4.3 Life in society

Up to now, science and technology policy has not been closely enough linked to the needs of society in general or the individual in particular.

Indeed, research policy in the post-war period was concentrated on spectacular large-scale projects; only few research programmes, either in the Member States or at Community level, were devoted to the main problems of the man in the street. In particular social problems were neglected. Today they are assuming a new dimension.

The consequences resulting from unsolved social problems are becoming a heavy burden on budgets. In addition, potential conflicts are brewing that could threaten political systems. Conse- quently, the area of social and sociological problems must be considered a research sector in its own right. In particular the effects of technology on society must be analysed. Community research under the heading of social and sociological problems is preparing to do this.

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4.3.1. Social policy

European unification requires a common social policy; it requires detailed knowledge of the present situation and future trends. Serious social strife within the Member States· will affect the harmonious development of the Community.

International social research in Europe is only beginning. The planned Community research programme under the concerted action scheme can bring considerable benefit for little input.

The major points of the social research programmes will be:

- The social consequences of technological development. This will consist in particular of social science research to accompany the Community's specific technology programmes.

- Under the heading 'social systems', comparable problems in the Member States will be in- vestigated. The position of the underprivileged, of prisoners, drug addicts, and the mentally dis- turbed ·has to be analysed, as has the growing percentage of old people. There has so far been little research into the conflict between town and country and the social difficulties caused by mi- gratory movements, including migrant workers.

The trends towards regionalization and decentral- ization have also to be considered. These are all problems directly affecting the future development of the Community.

- Improvement of the scientific basis for research on social problems. There are still weak- nesses in the methods and techniques available.

Research in this area should:

• develop deeper and more systematic knowledge of the demographic evolution and its consequences, of the present and future needs and aspirations of individuals, social groups and institutions (utilization of empirical social research), and

• improve the social science data base and techniques available for the analysis of social problems.

Many areas of social science are only just developing. The problems transcend national frontiers.

A large amount of empirical data is necessary in order to obtain comparable research results; indi-

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vidual Member States on their own provide an insufficient base. The varying development trends in social research in the Member States call for coordination at Community level and thus increase the effectiveness of research in this area. It is possible to test the results of Commu- nity research in demonstration projects. Commu- nity research can act effectively as a pacemaker in this context.

4.3.2. Town and country planning

Urban and rural authorities are faced with mounting difficulties in all Community countries.

The growth of recent years is reaching limits which put an increasing stress on life in large cities. At the same time, financial difficulties reduce the scope for effective action.

Community research on town and country planning is looking for a new approach. In the framework of a concerted action project it will bring together Community urban planning experts who have so far been working at national level and often reacting to, rather than anticipating, problems.

The main activity is concerned with the growth of conurbations and the consequences of the concentration processes. The various town planning policies and the activities of public authorities will be evaluated. The problems in Member States are comparable. The sum of their experi- ences should produce a new overall picture that social scientists in individual Member States cannot obtain for lack of adequate empirical material.

The research results are intended to be of a practical nature in order to help planners and politicians in conurbations that are becoming difficult to manage.

4.3.3. Medicine

Medicine and health are a sector of growing importance within the framework of Community research. The difficulties of maintaining the mounting costs of health within acceptable limits are compounded by the changing health pattern.

The diseases of civilized life such as cardiac and circulatory disorders, psychiatric illnesses, geriat-

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ric diseases and congenital abnormalities are having an increasing impact. Furthermore, there are new and advanced technologies available to com- bat diseases, but they are still in an early stage of development.

The Community is developing its research effort in the field of medicine and public health by means of concerted actions. Considerable empha- sis is being laid on prevention, on the early detection of diseases and on rehabilitation.

As a first stage of a common research programme the following three fields have been chosen:

(i) The registration of congenital abnormalities meets an increasing need at Community level.

For any useful investigation of the causes of mal- formations, large quantities of numerical data will have to be analysed by statistical methods. This is not feasible for any Member State on its own.

(ii) Cellular ageing and decreased functional capac- ity of organs. Here, the so far rather neglected phy- siological processes of ageing will be tackled. A steadily increasing number of people are living longer in the European Community. Research on cellular ageing has hitherto lacked coordination.

The results of the Community research are important for studying ways to maintain better health up to a greater age.

(iii) Extracorporal oxygenation (heart-lung-ma-

chine) is concerned with artificial oxygenation, for instance during heart and lung operations. So far, the applicability of oxygenators-e.g. during operations-has been too limited in duration. New technologies must be developed to permit pro- longed oxygenation. Such development is expensive. In Europe, there are only a few specialists who can carry out this type of research. Commu- nity research is effectively pooling together spe- cialized knowledge on the subject.

Medical research has hitherto primarily concentrated on therapy. The early diagnosis of disease and systematic efforts to prevent it, as well as the integration of medical research with other fields of research and vital activities have so far been neglected. In this respect, Community research is trying to develop a new approach, focusing on three inter-disciplinary areas: epidemiology, medical biology and bio-engineering.

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4.3.4. Radiation protection

The development of nuclear energy and the use of nuclear techniques in modern medicine and other vital fields incur various problems: The individual citizen is directly concerned with the effects of radiation. The general public's mistrust of radioactive radiation has increased.

The Euratom Treaty entrusts the Community with the task of defining basic safety standards for radiation protection, which are founded on knowledge acquired through scientific research.

Since the creation of Euratom, Community research is playing a decisive role in this area.

Out of the total funds-about 60 million u.a. per year-spent by the Member States and the Com- munity in the field of radiation protection, 16 million u.a. are devoted to the Community programme. This means that the Community not only exercises a considerable influence, but also coordinates a significant part of the research carried out in Community countries in this field. A scientific community of radiobiologists has thus gradually developed during the 16 years of the radiation protection programme.

The Community's radiation protection programme (1976-80) has the following components:

- evaluation of radiation risk and radioactive contamination of the environment;

- genetic effects of ionizing radiation;

- short-term effects of ionizing radiation, the analysis of which is important as regard treatment after irradiation accidents;

- long-term effects of ionizing radiation, for instance, in tumour development;

- radiation dosimetry and interpretation of the measurements as the basis for all research in radiation protection.

Community research on radiation protection is in line with the collective needs of the Member States. Through coordination, the research is becoming more effective and comprehensive. In addition, there is a close relation between research in the field of radiation protection and research in other fields, such as energy (especially reactor safety), the environment, medicine, and cellular and molecular biology. Irrespective of further developments in the field of nuclear techniques,

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research on radiation protection will increase in importance. High on the list of priorities is the protection of citizens against all kinds of radiation, which should include those produced by microwave appliances, UV -irradiation and the use of the laser, the effects of which are still largely unknown.

4.3.5. Molecular biology and genetics

This research field has already been the cause of much debate, not only in the United States, but also in Europe. Manipulation of genes has only become possible by the application of the findings of molecular biology research. Research in this area could well open some of the most fascinat- ing projects of the whole history of biological sciences, but, unless carefully controlled, could also have frightening consequences. Through the stimulation of individual efforts in the Member States, Community research has a chance of accelerating progress in this field.

The Community also has a significant role to play with regard to the protection of the public against potentially dangerous experiments, and will take appropriate action to prevent the development of divergent attitudes in the Member States.

The new programme on molecular and cellular biology emphasizes three main areas:

(i) Gene manipulation concerns action on genes at molecular level. This aspect offers considerable potential in agriculture and bio-industry but needs comprehensive research. In certain cases-for security reasons-a concentration of experiments in specially equipped laboratories is necessary.

(ii) The field of bio-technology concerns the pro-

duction of new substances from micro-organisms and cell structures. This can lead to lower energy costs, higher yields of specific products, and the development of products which are less harmful to the environment.

(iii) In molecular pathology the purpose of Com-

munity research is to contribute to the elucida- tion of primary causes and symptoms of the diseases of modern civilization. Leukaemia, cancer, arteriosclerosis, genetic anomalies and even

23

Common policy in the field of science and technology. Supplement 3/77 Bulletin of the European Communities

Bulletin

EUROPEAN COMMUNITIES

I

Common policy for

science and tech no logy

Common policy in the

field of science and technology

CD'Yl-\,('1'1)2-'8' 3,

.J(M.U_ taz_q1

,g-'7/'1'7)

COM (77) 283 final

30 June 1977

OJ C 187/77

Supplements 1977

contents

9.

3.

38 39

Page 6 in the original is blank.

Page 8 in the original is blank.

Guidelines

(1977-80)

1. Community research and technology policy Why and how?

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2. The common policy in the field of science

and technology - Objectives, framework, constraints,

assessment and selection criteria

a~d

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3. The Joint Research Centre

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Join~ Rese~rch

4. The principal scientific

and technological programmes of the EC

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.

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